Incident response framework for WUI

To prepare for an eventual wildfi re, WUI communities should know what resources are available to aid in incident response and recovery. Any type of “incident” is addressed under FEMA’s Incident Command System (ICS). Incident response is a general term used to describes all large-scale disaster response from hurricanes to wildfi res. Under ICS, incident response is organized under a chain of command system. This is a unifying system, allowing multiple jurisdictions to operate under one command. If a community is to be resilient and prepared for wildfi re, a preexisting framework must be in place so that incident response can mobilize.

ICB Site Selection Criteria

According to the ICS and the National Wildfi re Coordinating Group (NWCG) fi eld guide, sites for an incident base must be determined and scouted for continued response. The Incident Commander determines a location based on the following criteria: 1. Proximity to incident – unique for each incident. 2. Size – is there enough space for needed personnel? 3. Ingress and egress – are entrances and exits clearly demarcated, accessible, and close to major thoroughfares? Incident command base (ICB) sites typically chosen are normally infrastructure like schools, fairgrounds, or parks. Eliminating site selection process by predetermining locations to house a ICB can increase response times and eliminate need for potential relocation. While the location of each incident varies, cities should locate existing infrastructure of sizable area and use the information to inform their hazard mitigation plans and publish information for use by local fi rst responders.

Incident Types

Based on available acreage, each infrastructure recourse should be assigned a 1, 2 or 3, demarcating which type of incident it can house. Wildfi re incident response is categorized into three tiers, largely determined by number of personnel needed for response.

Type 3 Incident

Exceeds initial attack, will need a signifi cant number of resources. Requires 9.2 acres of space**.

Type 2 Incident Type 3 Type 2 Incident

Incident is beyond the capabilities of local control and spans multiple operational periods*. Incident personnel does not exceed 200 people. Requires 23 acres of space**.

Type 1 Incident

Most complex incident. Operation personnel exceeds 500 and incident spans multiple operational periods*. Requires 46 acres of space**.

Map of Suitable ICB Sites in Redding, CA

2

Proposed Project Location 300 acres

1

Benton Field and Airport 178 acres Cleared and Undeveloped Lots 9.6 acres

3

Shasta High School 12.4 acres

3

Highway 99 Sacramento River 2 Caldwell Park & Lake Redding Golf Course 31.7 acres

Convention Center Grounds 21.4 acres

Cal Fire Station and Park Space 27 acres

3 3

2

Sequoia Junior High School 11.7 acres

Juniper Elementary School 24.8 acres

2

1

Industrial Park 19.5 acres Agriculture Plot 83 acres

N.T.S.

*Operational Period is defi ned as the time scheduled for the execution of a given set of tactical action specifi ed in the Incident Action Plan. Periods do not exceed 24 hours. **Estimates of acreage requirements do not include helicopter bases.

Dining: .7 Bath: .5 Fueling: .8 acres Medic: .2

ICP: .4 Dining: 1.75 Bath: 1.25

Fueling: 2 acres Medic: .5

ICP: 1

Sleeping: 3.6 acres Staging: 3 acres Type 3 Incident

0 1/2 1 2

1” = 1 acre

Sleeping: 9 acres Type 2 Incident

Parking/Staging: 7.5 acres

Medic: 1 acre

ICP: 2 acres

Bath: 2.5 acres

Sleeping: 18 acres Parking/Staging: 15 acres Fueling: 4 acres Dining: 3.5 acres

No framework for required acreage existed at the start of this project. It is my assumption that this knowledge exists within the wildland fi re fi ghting profession but has not been published for the use of the design profession. Acreage requirements were found via area takeoffs of ICB precedents - the 2018 Camp Fire and 2017 Lolo Fire. Those acreage estimates where then compared against the number of personnel involved in the response that is provided by the National Wildfi re Committee Group and estimated for a Type 3 Incident. It is possible that an incident exceeds the estimated acreage requirements.

In addition to overall acreage estimates, each incident requires a mix of open and interior spaces. The 2018 Camp fi re used the Chico fair grounds as their ICB because it had enough space and a good mix of open space, typically used for vehicle staging and sleeping, and interior space for the Incident Command Post (ICP) to use. The ICP houses technicians who produce important fi refi ghting resources like weather maps, updated fore boundary maps, as well as conceive initial attack strategies. This requires a quiet, separate workspace that can house computers. The graphic to the left provides a breakdown of the typical ICB requirements based on incident type.

Additional Acreage Requirements

Expanding Local Capacity

The provided information can also be used to design new infrastructure. My site design features “dual use infrastructure”; space that serves a typical function but can be transformed to serve in incident response. After creating the space requirement guidelines, I used them to pick and size program elements within the park. For example, sports fi elds can provide a large space well suited for vehicle staging and sleeping. Based on community need and existing stock in the region, it was feasible to include 4-6 sports fi elds on site. The site has a proposed 17.9 acres that can be used for vehicle staging and sleeping, enough to serve a Type 2 incident response. This same process was used in choosing and sizing most program elements on site, including parking, the gymnasium, and community center. This process can be applied to any new project in a WUI community.

Strategies for designing new infrastructure in the WUI

The following sections provides strategies for designing and maintaining landscape spaces in WUI communities. These strategies are meant to decrease the risk of wildfi re in WUI communities while promoting controlled wildfi re in wildlands to promote healthy ecosystems. Strategies are informed by fi re ecology, wildland fi refi ghting techniques, known wildfi re mitigation techniques and California building code, as well as precedent projects within landscape architecture.

ACTIONS TO INCREASE Fuel Reduction Controlled BurnsCodes, Plans & Ordinances Defensible SpaceForest Management Hazard & Risk Assessments Firewise Communities Response FIRE RESILIENCY Research Cooperative Fire Agreements Local CapacityComm. WildfireProtection PlanInternal Safety Zones Post-fire Recovery Fuel Breaks Education

1. Spatial Gradation

Creating a gradation of space between wildlands and urban areas can help stop the spread of wildfi re. When building new infrastructure, use the spatial gradation as a defense method. Areas adjacent to wildlands should be similar fuel types but have lower horizontal continuity. When fuels are managed and spaced further apart it breaks a portion of the fi re triangle (fuels, heat, and oxygen) to stop the spread of fi re. Areas closer to urban areas should feature fi re breaks, extremely low fuel continuity and any structures in this zone should be constructed with fi re resistant materials, adhering to California building code too.

Spatial Gradation in the WUI

Mitigated wildlands Unmitigated wildlands

Interface

Urban

2. Fire Resistant Site Materials

Anything new constructed in an WUI community should use fi re resistant materials. Theses materials are not fi reproof but are resistant to a certain heat threshold. Some landscape materials like metals or treated wood are appropriate while materials that release toxins under extreme heat should be avoided. Landscape plantings should be “fi rescaped” to be fi re resistant. Plants should be planted in zones to protect your property but choosing the right plants for each zone is also important. Fire resistant plants typically have a high moisture content, may be broad leafed and deciduous and should be maintained to maintain a low fuel continuity. Zone 1 is 30’ surrounding the property and has low, high moisture plants. Zone 2 is a 40’ fuel break, zone 3 is 50’ wide with low fuel continuity and merges into the wildland in zone 4.

Planting Zones

zone 4: wildland zone 3: interface zone 2: fuel break zone 1: garden least resistant grass

untreated wood

conifers

turf grass

broad leafed plants

treated wood

most resistant concrete

masonry

metals

3. Local Capacity

This topic was summarized in Section 2: Incident response framework for WUI. New projects in WUI communities should be “dual use” - serve an intended function but able to transition into a space to serve incident responders to increases local response capacity. Criteria and framework for designing spaces to serve wildland fi re responders is summarized in Section 2 (pages 3-7).

4. Education

Increasing ecological literacy rates in WUI communities is a crucial component to successful projects and well-prepared communities. Due to a history of fi re suppression in the U.S. many are under the impression that fi re in the landscape is unnatural and dangerous. While fi re can be dangerous – it is an essential ecosystem component for most Western U.S. landscapes. It is important that people realize fi re must have a place in their community if there is to be a reduction in wildfi re risk. This can create a tolerance around controlled burning and destigmatizing wildfi re. In addition, properly educated community members understand how to protect their properties against wildfi re by changing out wood shingled roofs to tile, maintaining proper vegetation setbacks around their house and making sure house numbers can easily be seen from the street by emergency responders. Publicly known evacuation routes can reduce gridlock during evacuation and increase response time. This strategy can be implemented in a variety of ways. On my project achieves this by having a fi re ecology center as part of the park program. Park maintenance is carried out of this building, as well as staff who are available to interact with the public and provide information on fi re’s role in the landscape as well as ways to protect your property. In addition, educational signage is used in the park when appropriate.

5. Fuel Reduction

Fuel reduction consists of removing excess fuel to decrease fuel loading in the landscape. In addition, ladder fuels like low hanging branches are removed to prevent fi re from spreading into tree crowns. Crown fi res are the most dangerous type of fore to fi ght and should be prevented via mitigation measures. Fuel reduction requires ongoing maintenance from trained crews. Tools like chainsaws, loppers and handsaws must be safely operated by trained professional. Part of the project’s maintenance staff will work out of the fi re ecology center and conduct regular fuel reduction throughout the park to mitigate wildfi re risk.

Impacts of Fuel Reduction on Vegetation Pre-Reduction Post-Reduction

fast igniting light fuels fewer light fuels

loading of surface and aerial fuels low fuel continuity 6. Controlled Burns

Allowing fi re into the landscape may appear to be a contradiction but it has many benefi ts. Allowing for continual low intensity fi res helps to reduce fi re spread as horizontal fuel continuity is reduced. Small fuels such as grass are the main contributors to rapid fi re spread as they take the least amount of time to preheat to ignition point. In comparison, larger fuels like pine trees can take up to ten hours to preheat and ignite if they have appropriate moisture contents. Light and medium fuels should be burned out regularly, every 1 – 5 years to prevent fuel build up. Controlled burns must be conducted when temperatures are low enough to limit fi re spread – typically early winter to spring. Air quality restrictions also limit controlled burns. They should be conducted when wind will carry smoke away from populated areas. On the project site, controlled burns are a part of the park programming. When conducted, the public will be notifi ed, and the area will be closed off. Routine controlled burns should be implemented when appropriate in WUI communities to reduce wildfi re risk and raise awareness of fi re’s ecological processes.

7. Fuel Breaks

Fuel breaks are a common way to stop wildfi re spread. By removing fuel from the landscape, the fi re triangle is broken, and fi re is theoretically stopped from spreading. Using fuel breaks as a landscape feature in new projects can help protect adjacent vulnerable areas. Corridors along hiking and biking trails can be cleared and maintained. Strategically paced roads can add an additional level of protection as roads are a form of fi re breaks.